TF 
7*5 

B77&5 


DOWN  TOWN  BROOKLYN 

^^ 

A  Report  to  the  Comptroller  of  the  City  of 

New  York  on  Sites  for  Public  Buildings 

and  the  Relocation  of  the  Elevated 

Railroad  Tracks  now  in  Lower 

Fulton  Street,  Borough 

of  ^Brooklyn 


DOWN  TOWN  BROOKLYN 

A  Report  to  the  Comptroller  of  the  City  of 

New  York  on  Sites  for  Public  Buildings 

and  the  Relocation  of  the  Elevated 

Railroad  Tracks  now  in  Lower 

Fulton  Street,  Borough 

of  Brooklyn 


BROOKLYN,  NEW  YORK 
MCMXIII 


TF725- 


LETTER  FROM  THE  COMPTROLLER 

April  18th,  1913. 
Dear  Mr.  Pratt: 

It  appears  to  me  that  the  time  has  now  arrived 
when  some  definite  policy  should  be  formulated  re- 
garding a  number  of  needed  improvements  in  the 
Borough  of  Brooklyn,  with  particular  reference  to  a 
settlement  of  the  court  house,  bridge  terminal  and 
other  questions.  We  have  had  considerable  discus- 
sion regarding  these  matters,  and  while  this  discussion 
has  developed,  as  it  naturally  would,  many  divergent 
views,  I  am  confident  that  it  has  also  served  a  most 
useful  purpose  because  now  we  all  have  a  much  better 
idea  of  the  work  that  has  to  be  undertaken  and  the 
importance  of  intelligent  and  united  action  governing  it. 

It  is  very  necessary  that  some  one  should  take  the 
lead  and  I,  therefore,  suggest  that  you  endeavor  at  the 
earliest  possible  time  to  effect  a  meeting  of  those  inter- 
ested as  citizens  and  officials  in  developing  the  best 
plan  for  Brooklyn's  improvement,  with  a  view  to 
having  a  definite  policy  proposed  and  so  determined 
at  this  time  that  the  only  thing  necessary  in  the  future 
will  be  the  authorization  of  the  funds  to  carry  the 
plan  into  effect. 

There  should  be  a  civic  center  in  Brooklyn.  We 
have  a  nucleus  of  such  a  center  in  the  present  Borough 
Hall.  We  need  a  new  terminal  for  the  Brooklyn  en- 
trance of  the  Brooklyn  Bridge,  a  better  approach  to 
that  bridge  by  the  present  elevated  railroad  lines,  the 
removal  of  the  elevated  railroad  tracks  from  lower 
Fulton  Street,  a  new  court  house,  a  new  municipal 


REPORT  TO  THE  COMPTROLLER  ON 

building  and  a  thorough  improvement  of  that  section 
running  from  the  intersection  of  Myrtle  Avenue  and 
Washington  Street  to  the  terminal  of  the  Brooklyn 
Bridge,  using  this  improved  section  for  the  purpose 
of  carrying  out  a  general  beautification  of  the  proposed 
civic  center. 

All  of  these  things  cannot  be  done  at  once,  but  they 
are  all  a  part  of  what  should  be  a  general  plan.  I  be- 
lieve that  if  the  subject  be  approached  in  a  spirit  of 
civic  patriotism  a  general  plan  can  be  developed  which 
will  mean  the  ultimate  procurement  of  all  these  much- 
needed  improvements,  and  in  such  a  way  as  to  be  of 
the  greatest  benefit  to  Brooklyn  as  a  borough. 
Yours  truly, 

WILLIAM  A.  PRENDERGAST, 
Comptroller 

MR.  FREDERIC  B.  PRATT 

Brooklyn,  New  York 


Upon  receiving  the  foregoing  letter,  Mr.  Pratt  con- 
ferred with  a  large  number  of  officials  and  citizens 
interested  in  the  progress  of  Brooklyn,  and  acting 
upon  their  advice  formed  a  committee  of  ten,  believed 
by  him  to  be  representative  of  the  various  points  of 
view,  for  the  purpose  of  making  a  systematic  study 
of  the  problems  set  forth  and  to  formulate  a  report 
with  definite  recommendations.  The  report  and  recom- 
mendations of  the  committee  appear  in  the  following 
pages. 


REPORT  OF  THE   COMMITTEE 

OF  TEN  CITIZENS  OF  BROOKLYN  APPOINTED  AT  THE  SUG- 
GESTION OF  WILLIAM  A.  PRENDERGAST,  COMP- 
TROLLER OF  THE  CITY  OF  NEW  YORK 

Since  the  appointment  of  this  committee  on  the  30th 
day  of  April,  1913,  it  has  had  frequent  meetings,  con- 
ferences and  hearings.  Conferences  have  been  had 
with  representatives  from  organizations  that  have 
given  time  and  study  to  the  subjects  within  the  scope 
of  this  committee.  Several  public  hearings  were  held, 
notice  of  which  was  given  in  the  public  press.  Written 
communications  have  been  invited  from  all  persons  in- 
terested. Architects  have  been  employed  to  advise 
and  we  have  had  the  help  of  competent  engineers. 

At  the  outset  the  committee  has  been  compelled  to 
recognize  the  situation  of  Brooklyn  and  its  relation  to 
Manhattan  and  Greater  New  York.  Brooklyn  has 
always  labored  under  the  disadvantage  that,  although 
its  residents  have  helped  create  the  great  assessed 
valuations  in  lower  Manhattan,  it  did  not  before  con- 
solidation receive  any  benefit  from  the  taxation  of 
those  values.  In  this  respect  Brooklyn  was  not  and 
even  now  is  not  like  independent  cities  such  as  Buffalo, 
Cleveland  or  Chicago,  where  both  residences  and  office 
buildings  contribute  alike  to  support  the  same  munici- 
pal government.  Prior  to  consolidation  on  January 
1st,  1898,  Brooklyn  had  reached  the  limit  of  her  con- 
stitutional borrowing  capacity.  The  city  needed  many 
new  schools  and  more  bridges  and  tunnels  across  the 
East  River.  Along  with  many  disadvantages  that 


REPORT  TO  THE  COMPTROLLER  ON 

flowed  from  consolidation,  there  came  the  great  ad- 
vantage that  Brooklyn  at  last  received  a  portion  of  the 
tax  money  raised  on  the  real  estate  in  lower  Manhat- 
tan, to  which  Brooklyn  people  had  helped  to  give  a 
high  value.  It  must,  however,  be  recognized  that 
Manhattan  is  the  central  borough,  and  that  as  the 
business  and  municipal  center  of  Greater  New  York 
she  is  entitled  to  pre-eminence  in  buildings  to  transact 
the  city's  business.  Now  that  the  boroughs  constitute 
one  city,  Manhattan  must  help  to  give  the  outlying 
boroughs  those  utilities  that  their  growth  reasonably 
requires,  and  the  outlying  boroughs  must  recognize 
Manhattan  as  the  business  and  official  center. 

For  the  last  twenty  years  the  industrial  population 
in  Brooklyn  has  been  greatly  increasing.  Officials  and 
loyal  citizens  who  desire  that  the  historic  character  of 
Brooklyn  should  be  preserved  cannot  afford  to  wait 
ten  years  before  a  beginning  is  made  to  brighten  up 
the  downtown  district.  Continued  migrations  of  home 
owners  from  Brooklyn  to  New  Jersey  and  to  counties 
outside  of  Greater  New  York  may  weaken  the  ability 
of  the  borough  to  preserve  its  entity  and  character. 
If  it  should  once  become  a  somewhat  neglected  indus- 
trial annex  of  Manhattan,  the  result  would  be  injurious 
both  to  Brooklyn  and  Manhattan.  No  greater  calamity 
could  happen  to  every  part  of  Brooklyn  than  to  have 
the  borough  lose  its  civic  pride. 

When  we  add  to  the  foregoing  considerations  the 
fact  that  Greater  New  York  has  nearly  reached  the 
constitutional  limit  of  its  borrowing  capacity,  we 
should  not  delude  ourselves  into  thinking  that  per- 
sistent and  long-continued  demand  will  bring  indefinite 
millions  of  dollars  to  Brooklyn  in  the  near  future. 
The  vast  contemplated  expenditure  for  rapid  transit 

6 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

railroads  brings  a  share  to  Brooklyn,  but  even  to  vali- 
date the  dual  rapid  transit  contracts  it  was  necessary 
to  dedicate  to  subways  $50,000,000  out  of  the  $65,- 
000,000  of  self-supporting  dock  bonds  exempted  under 
the  recent  constitutional  amendment,  while  we  in 
Brooklyn  know  that  more  than  $15,000,000  are  needed 
for  dock  improvements  in  Brooklyn  alone  during  the 
next  ten  years.  In  order  to  obtain  a  sufficient  margin 
within  the  debt  limit,  assessed  valuations  have  been 
placed  at  full  value,  and  in  some  cases  beyond  prices 
that  property  will  bring  in  the  open  market.  Until 
the  comprehensive  rapid  transit  plan  is  completed  in 
the  course  of  four  to  six  years,  it  cannot  be  expected 
that  there  will  be  a,  substantial  increase  in  assessed 
valuations,  taking  the  city  as  a  whole. 

With  all  of  these  considerations  before  us  we  have 
concluded  that  the  strictest  economy  must  be  observed 
in  improving  the  downtown  district  of  Brooklyn,  and 
that  every  dollar  expended  should  be  not  only  of  the 
greatest  use  for  the  special  purpose  to  which  it  is  put, 
but  also  that  every  dollar  expended  should  give  co- 
ordinated results.  Therefore  we  consider  that  such 
lands  as  are  taken  for  public  buildings  should  also  con- 
tribute toward  the  opening  up  and  improvement  of  the 
central  business  locality. 

Outside  of  money  for  rapid  transit  lines,  docks, 
schoolhouses  and  street  improvements,  it  is  not  likely 
that  the  Borough  of  Brooklyn  will  within  the  next 
eight  years  receive  any  substantial  sums  except  for 
the  new  municipal  building  and  a  new  court  house.  If 
these  buildings  are  placed  in  isolated  locations  where 
they  have  no  relation  to  one  another  nor  to  the  borough 
center,  it  will  be  most  unfortunate.  Like  the  Academy 
of  Music,  which  is  surrounded  by  narrow  streets,  they 

7 


REPORT  TO  THE  COMPTROLLER  ON 

would  confer  only  a  partial  benefit.  Therefore  the 
question  of  their  location  is  more  than  finding  a  good 
spot  for  a  court  house  or  municipal  building.  The 
problem  is  to  find  locations  that  will  be  convenient 
for  the  public  business,  have  a  relation  to  each  other 
and  other  public  improvements,  and  contribute  to  the 
acquirement  of  more  open  space  where  it  will  do  the 
most  good. 

We  think  that  the  Borough  Hall  locality  should  be 
preserved  and  improved  as  the  borough's  municipal 
center.  Some  say  that  we  should  look  to  Eastern 
Parkway,  some  to  Flatbush  Avenue  Extension.  But 
Borough  Hall  Park  is  the  old-time  and  long  settled 
center.  The  large  office  and  financial  buildings  are 
there.  It  is  convenient  of  access  from  every  part  of 
the  borough.  Every  new  rapid  transit  line  will  be 
directly  connected  with  it.  It  is  opposite  the  district 
of  corresponding  use  in  Manhattan.  It  is  separate 
from  the  congested  shopping  district  and  will  undoubt- 
edly remain  so.  Some  advocate  Flatbush  Avenue 
Extension  as  the  best  place  for  new  buildings.  The 
future  value  of  the  Extension  even  for  public  build- 
ings cannot  be  denied.  Canal  Street,  Manhattan 
Bridge,  the  Extension  and  Flatbush  Avenue  furnish  a 
continuous  broad  thoroughfare  from  the  North  River 
to  Jamaica  Bay.  When  Greater  New  York  becomes 
a  city  of  10,000,000  people,  it  may  become  the  axis 
for  magnificent  public  buildings  both  in  Manhattan 
and  Brooklyn.  But  Canal  Street  today  is  a  locality 
of  small  business  and  it  is  premature  to  try  to  force 
its  Brooklyn  continuation  into  prominence  as  a  civic 
center.  Although  Manhattan's  new  court  house  will 
be  built  on  Center  Street,  yet  the  front  door  of  Man- 
hattan's civic  center  will  be  the  City  Hall  Park  for  the 

8 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

next  thirty  or  forty  years,  and  Canal  Street  at  its 
best  will  be  only  the  back  door.  When  the  big  business 
of  Manhattan  reaches  Canal  Street  it  will  be  time 
enough  to  use  city  money  for  great  public  buildings 
on  the  Extension.  If  Brooklyn  were  an  independent 
and  self-contained  city  like  Boston  and  Chicago  it 
might  experiment  without  fear  in  building  up  a  new 
civic  center,  but  Brooklyn  today  must  look  well  to 
hold  her  own  against  the  constant  draft  that  Man- 
hattan makes  on  her  financial  and  office  center. 

Brooklyn  Bridge  is  today  and  for  a  long  time  will 
be  the  main  entrance  to  Brooklyn.  The  district 
between  the  bridge  and  Borough  Hall  has  become  de- 
pressed and  unsightly,  mainly  because  the  retail  shop- 
ping business  left  it,  and  Brooklyn,  unlike  independent 
cities,  had  no  wholesale  mercantile  business  to  take  its 
place.  No  city  can  hope  to  improve  and  brighten  itself 
and  still  neglect  its  front  door.  The  Clark  Street  sub- 
way will  have  a  station  near  lower  Fulton  Street.  The 
federal  government  has  appropriated  money  to  en- 
large the  Post  Office.  The  bridge  terminal  has  ceased 
to  be  a  terminal  and  has  become  a  way  station,  so  that 
now  the  structures  that  deface  the  entrance  to  Brook- 
lyn can  be  taken  down,  as  Bridge  Commissioner 
O'Keeffe  proposes,  and  a  solid,  simple,  low-lying 
structure  substituted  for  the  sheds  and  aerial  mon- 
strosities. Surely  now  is  the  time  to  link  such  an 
improvement  with  the  clearing  up  of  the  whole  district. 

The  borough  must  within  a  few  months  either  grasp 
or  lose  its  chance  to  start  this  work.  As  part  of  the 
dual  rapid  transit  system  the  city  has  issued  to  the 
Municipal  Railway  Company,  controlled  by  the  Brook- 
lyn Rapid  Transit  Company,  a  certificate  to  third 
track  its  Fulton  Street  elevated  line  from  the  East 


REPORT  TO  THE  COMPTROLLER  ON 

River  to  East  New  York.  The  complications  in  per- 
fecting the  dual  contracts,  and  the  need  of  haste,  were 
so  great  that  the  problem  of  freeing  Borough  Hall  Park 
and  lower  Fulton  Street  of  the  elevated  railroad  was 
not  solved  and  inserted  in  the  contracts,  but  immedi- 
ately after  the  signing  of  the  dual  plan,  Mayor  Gaynor, 
Borough  President  Steers,  the  Public  Service  Commis- 
sion and  the  Board  of  Estimate  took  action  resulting 
in  the  preparation  and  passage  by  the  Legislature  of 
an  amendment  to  the  Rapid  Transit  Act  providing  for 
the  relocation  of  the  tracks  and  the  making  of  a  con- 
tract for  that  purpose  between  the  Public  Service 
Commission  and  the  company.  Thus  the  way  is  paved 
for  the  removal  of  the  elevated  tracks  to  Adams  Street, 
taking  them  entirely  out  of  lower  Fulton  Street  and 
Borough  Hall  Park.  Orders  for  the  fabrication  of 
steel  for  the  third  track  construction  will  soon  be 
placed,  and  if  the  contract  for  re-location  is  not  made, 
the  steel  will  be  ordered  for  reconstructing  the  ele- 
vated railroad  in  its  present  location.  It  would  be 
unfortunate  indeed  if  additional  outlays  should  serve 
to  perpetuate  the  railroad  in  Borough  Hall  Park.  At 
the  same  time  that  the  tracks  are  removed,  it  is  de- 
sirable that  the  city  should  do  as  much  as  possible  in 
opening  and  improving  the  unsightly  locality  between 
Fulton  and  Washington  Streets.  As  an  independent 
proposition  the  taking  of  so  much  land  has  not  ap- 
pealed to  some  of  the  members  of  the  Board  of  Esti- 
mate, but  an  entirely  different  question  is  presented  if 
this  area  can  be  used  in  part  for  one  of  the  new  public 
buildings.  Plan  6  shows  the  locality  as  it  would  appear 
after  the  tracks  are  re-located  and  the  plaza  opened. 
Washington  Street  should  be  widened  to  correspond  to 
the  width  of  the  open  space  now  opposite  the  Mechan- 
ic 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

ics*  Bank  Building.  Some  say,  why  not  widen  Wash- 
ington Street  taking  forty  or  fifty  feet  of  private  land 
along  its  westerly  side  and  do  nothing  to  disarrange 
the  rest  of  the  property  between  Washington  Street 
and  Fulton  Street?  The  answer  to  this  is  that  the 
taking  of  parts  of  the  buildings  would  in  many  cases 
be  almost,  if  not  quite,  equivalent  to  a  total  destruc- 
tion of  the  entire  properties.  If  the  city  should  acquire 
for  public  purposes  the  three  blocks  lying  between  Ful- 
ton Street  and  Liberty  Street  on  the  west  and  Wash- 
ington Street  on  the  east,  it  could  widen  Washington 
Street  to  the  required  width  of  110  feet,  use  the  space 
opposite  the  Post  Office  for  one  of  the  new  buildings, 
and  design  the  open  space  near  the  bridge  as  a  dig- 
nified and  fitting  approach  to  Brooklyn  Bridge,  cor- 
responding to  some  extent  to  the  open  space  partly 
covered  by  the  Manhattan  municipal  building  at  the 
other  end.  This  should  be  done  in  connection  with 
Commissioner  O'Keeffe's  plan  of  reconstructing  the 
bridge  terminal.  The  new  public  building  located  here 
would  not  act  as  a  stopper  in  the  bridge  plaza,  because 
the  space  now  between  the  Mechanics'  Bank  Building 
and  Myrtle  Avenue  is  of  a  fixed  width  and  acts  as  a 
fixed  limitation.  If  Washington  Street  is  widened  to 
the  same  width,  the  approach  to  the  bridge  plaza 
proper  would  be  better  than  if  the  bridge  plaza  should 
extend  all  of  the  distance  to  Borough  Hall  Park.  In 
the  latter  case  the  plaza  would  be  too  large  and  not 
pleasing  in  form.  A  considerable  part  of  this  real 
estate  is  already  owned  by  the  city. 

By  chapter  390  of  the  laws  of  1909  the  Supreme  Court 
justices  of  this  department  were  empowered  to  select 
a  site  for  a  new  court  house  and  recommend  it  to  the 
Board  of  Estimate.  In  1910  they  selected  the  two 

11 


REPORT  TO  THE  COMPTROLLER  ON 

blocks  bounded  by  Court,  Clinton,  State  and  Living- 
ston Streets,  and  on  December  20th,  1911,  the  report 
was  made  by  the  Board  of  Sinking  Fund  Commis- 
sioners to  the  Board  of  Estimate.  The  Board  of 
Estimate  has  taken  no  action  thereon. 

In  July,  1911,  the  Board  of  Estimate  determined 
upon  the  southeast  corner  of  Court  and  Joralemon 
streets  as  a  site  for  the  new  municipal  building,  taking 
in  both  the  corner  and  the  land  covered  by  the  present 
municipal  building.  The  land  has  been  acquired, 
plans  for  the  building  have  been  prepared,  and  when 
the  Board  of  Estimate  makes  an  appropriation  for 
building,  actual  construction  can  begin.  If,  however, 
the  recommendations  of  this  report  should  meet  with 
favor,  the  municipal  building  would  be  erected  in 
another  place. 

The  committee  has  endeavored  to  deal  with  these 
four  factors,  viz.,  court  house,  municipal  building, 
bridge  plaza  and  re-location  of  tracks,  so  that  the 
money  expended  should  not  only  bring  the  best  result 
for  each  factor,  but  at  the  same  time  bring  the  addi- 
tional benefit  of  relating  the  four  factors  so  that  all 
will  unite  to  improve  the  downtown  center.  We  shall 
now  compare  the  cost  and  advantages  of  the  four  fac- 
tors as  presented  in  the  Clinton  Street  court  house 
site,  and  as  presented  in  the  other  plans  that  reasonably 
meet  the  needs  of  the  situation. 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

FIRST  PLAN 

CLINTON  STREET  COURT  HOUSE  SITE 
(See  diagram  marked  Plan  1) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Depart- 
ment of  Bridges,  and  assessed  value 
of  additional  property  required  for 
same $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings  be- 

tween Washington  and  Fulton  streets,     1,249,100.00 

3.  Assessed    valuation    land    and    buildings, 

Clinton  Street  site  for  court  house .  .  .      1,527,700.00 

4.  Municipal    Building    site    at    south-west 

corner  of  Court  and  Joralemon  streets 
(title  now  vested  in  the  city) 

Total $6,788,895.00 

This  plan  places  the  new  court  house  on  the  site 
selected  by  the  judges,  and  the  new  municipal  building 
on  the  site  that  has  been  condemned  for  this  purpose 
at  the  corner  of  Court  and  Joralemon  streets  to  which 
will  be  added  the  land  covered  by  the  old  municipal 
building.  For  the  purpose  of  these  comparisons  no 
values  are  placed  on  land  and  buildings  now  owned 
by  the  city. 

The  item  of  $4,012,095  for  Brooklyn  Bridge  changes 
and  re-location  of  tracks  is  the  same  in  each  of  the  six 
plans,  and  includes  the  assessed  values  of  the  entire 
half  blocks  east  of  Adams  Street.  The  re-location  of 
the  tracks  on  Adams  Street  will  require  a  six  track 
structure  between  the  bridge  and  Myrtle  Avenue  and 
a  three  track  structure  between  Myrtle  Avenue  and 
Fulton  Street.  Adams  Street  is  not  wide  enough  for 
so  many  tracks.  The  preponderating  engineering 
opinion  is  that  the  city  should  not  widen  Adams  Street, 

13 


REPORT  TO  THE  COMPTROLLER  ON 

but  remove  the  structure  to  the  half  block  east  of 
Adams  Street.  The  space  fronting  Adams  Street  under 
the  solid  track  floor  would  be  available  for  renting. 
The  cost  of  taking  the  half  block  by  condemnation 
would  not  materially  exceed  the  cost  of  taking  forty 
feet  along  the  block  fronts.  The  question  of  damages 
to  abutting  owners  would  be  avoided,  and  Adams 
Street  would  be  made  better  for  traffic  and  business 
than  it  is  now.  Part  of  this  large  item  would  be  paid 
by  the  railroad  company.  Under  the  terms  of  the 
third  tracking  certificate  already  issued  the  company 
is  to  pay  all  of  the  cost  of  reconstruction  and  better- 
ment of  the  structure  in  its  present  locations,  and  it  is 
understood  that  the  company  will  pay  at  least  an 
equal  amount  when  the  tracks  are  re-located  under  the 
new  law.  If  the  re-location  brings  other  benefits  to 
the  company  it  would  seem  that  even  a  greater  por- 
tion of  this  item  should  be  borne  by  the  company. 
The  new  law  provides  that  the  division  of  expense 
shall  be  arranged  between  the  Public  Service  Commis- 
sion and  the  company,  subject  to  the  approval  of  the 
Board  of  Estimate. 

The  new  court  house  according  to  this  plan  would 
be  600  feet  from  the  Hall  of  Records.  Although  the 
books  and  files  kept  in  the  Surrogate's  and  Register's 
offices  are  not  needed  so  frequently  in  trials  as  the 
papers  from  the  county  clerk's  office,  it  is  a  distinct 
disadvantage  to  have  them  so  far  away  from  the 
court  house. 

The  new  court  house,  on  this  site,  would  be  unre- 
lated to  any  other  improvement.  It  would  also  be 
entirely  surrounded  by  private  property,  admitting  of 
no  architectural  development  and  bearing  no  relation 
to  the  court  house  itself.  The  land  is  entirely  covered 

14 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

with  buildings  valuable  for  their  present  use  and  is  a 
recognized  center  for  physicians.  If  the  court  rooms 
are  made  to  face  toward  the  streets  they  will  increas- 
ingly be  subjected  to  street  noises,  for  we  find  that  no 
streets  in  this  locality  are  quiet.  Automobiles  and  auto- 
trucks abound.  If  this  site  were  acquired  for  the  new 
court  house  the  Board  of  Estimate  would  probably 
refuse  either  to  open  the  bridge  plaza  or  widen  Wash- 
ington Street.  The  result  would  be  that  practically 
no  general  improvement  to  the  financial  center  would 
be  made.  The  Joralemon  Street  front  of  Borough 
Hall  Park,  probably  the  most  dominating  site  in  the 
borough,  would  contain  three  buildings,  the  Hall  of 
Records,  the  old  court  house  and  the  new  municipal 
building,  none  of  them  harmonizing  with  the  others, 
and  bringing  little  or  no  distinction  to  the  most  promi- 
nent site  in  the  borough.  The  old  court  house  would 
be  relegated  to  criminal  business  to  the  detriment  of 
this  vicinity. 

It  would  seem  that  the  city's  plan  for  future  buildings 
should  make  some  use  of  the  Polytechnic  Institute  land. 
It  is  only  a  question  of  time  when  this  school  will  move 
elsewhere.  This  plan  throws  away  the  opportunity  of 
making  profitable  use  of  this  land. 

The  main  objection  to  this  plan,  however,  is  that, 
although  expensive,  it  brings  practically  no  help  to 
downtown  Brooklyn.  It  dissociates  the  desired  factors 
and  does  not  relate  them.  It  simply  procures  an  iso- 
lated court  house,  leaving  the  business  center  of  the 
borough  as  badly  off  as  before. 


15 


REPORT  TO  THE  COMPTROLLER  ON 

SECOND  PLAN 

FLATBUSH  AVENUE  EXTENSION  SITE  FOB  COUBT  HOUSE 
(See  diagram  marked  Plan  2) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Depart- 
ment of  Bridges,  and  assessed  value  of 
additional  property  required  for  same,  $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings 

between  Washington  and  Fulton  streets     1,249,100.00 

3.  Assessed  valuation  of  land  and  buildings 

Flatbush  Avenue  Extension  site  for 

court  house 564,650.00 

4.  Municipal  Building  site  at  south-west  cor- 

ner of  Court  and  Joralemon  streets 
(title  now  vested  in  the  city) 


Total $5,825,845.00 

In  this  plan  the  court  house  would  be  1,730  feet  from 
the  Hall  of  Records.  The  transaction  of  court  business 
on  the  border  of  the  retail  shopping  district  would  in- 
crease street  congestion.  It  is  distant  from  the  present 
office  district,  and,  if  selected,  injury  to  the  present 
office  district  would  result.  It  is  inconvenient  to  resi- 
dents of  certain  parts  of  the  city.  If  court  rooms 
fronted  on  the  street  they  would  yearly  become  more 
subject  to  noise.  The  available  space  would  not 
afford  as  large  an  interior  court  as  would  be  desirable 
if  the  court  rooms  were  to  face  inside.  If  this  site  were 
acquired,  the  bridge  plaza  would  probably  remain  un- 
opened. Like  Plan  1,  this  plan  scatters  the  benefit  of 
the  four  factors  under  discussion,  and  does  not  unite 
them. 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

THIRD  PLAN 

STATE  STREET  SITE  FOR  COURT  HOUSE 
(See  diagram  marked  Plan  3) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Depart- 
ment of  Bridges,  and  assessed  value  of 
additional  property  required  for  same  $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings 

between  Washington  and  Fulton  streets     1,249,100.00 

3.  Assessed  valuation  of  land  and  buildings  in 

the  two  blocks  bounded  by  Boerum 
Place,  Livingston,  Court  and  State 
streets 1,507,900.00 

4.  Municipal    Building    site    at    south-west 

corner  of  Court  and  Joralemon  streets 
(title  now  vested  in  the  city) 

Total $6,769,095.00 

Like  the  Clinton  Street  site,  this  site  would  be  so 
expensive  that  its  purchase  would  probably  preclude 
the  opening  of  the  bridge  plaza.  If  the  present  court 
house  should  be  retained,  the  new  court  house  would 
be  hidden  and  without  any  effective  relation  to  Borough 
Hall  Park.  If  it  had  outside  court  rooms  they  would 
be  noisy.  Schermerhorn  Street  would  either  need  to  be 
closed  or  else  carried  through  the  building  by  tunnel. 
In  the  former  case  one  of  the  streets  most  needed  for 
traffic  would  be  lost,  and  in  the  latter  case  the  street 
would  need  to  be  artificially  lighted  both  night  and 
day  and  even  then  would  be  troublesome  to  maintain. 
This  plan  is  open  to  all  of  the  objections  of  Plan  1. 
Indeed  it  is  even  less  desirable  as  it  interferes  more 
with  traffic. 


17 


REPORT  TO  THE  COMPTROLLER  ON 

FOURTH  PLAN 

LIVINGSTON  STREET  COURT  HOUSE  SITE 
(See  diagram  marked  Plan  4) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Department 
of  Bridges,  and  assessed  value  of  addi- 
tional property  required  for  same.  .  .  .  $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings  be- 

tween Washington  and  Fulton  streets,     1,249,100.00 

3.  Assessed  valuation  of  land  and  buildings  in 

block  bounded  by  Boerum  Place,  Liv- 
ingston, Court  and  Schermerhorn 
streets 881,900.00 

4.  Polytechnic  Institute  and  buildings  fronting 

on  Court  Street  not  taken  by  the  city 

for  new  Municipal  Building  site 733,700.00 

Total $6,876,795.00 

This  plan  has  been  pressed  by  very  competent  per- 
sons and  we  have  given  a  large  amount  of  detailed 
study  to  its  merits.  It  contemplates  that  the  old  court 
house  and  municipal  building  should  be  torn  down,  and 
that  the  new  court  house  should  be  set  far  back  from 
Joralemon  Street,  the  open  space  in  front  of  it  being 
flanked  by  the  Hall  of  Records  on  one  side,  and  a 
building  of  corresponding  design  on  the  other,  to  be 
used  for  children's  and  women's  courts.  The  court 
house  would  be  built  on  both  sides  of  Livingston  Street, 
which  would  be  double-decked  so  that  the  noise  of  sur- 
face cars  and  vehicular  traffic  could  not  reach  the  court 
rooms.  This  noise  is  now  considerable  on  account  of 
the  slight  grade  from  the  Court  Street  to  the  Boerum 
Place  level  which  requires  the  application  of  brakes  on 
the  down  grade.  On  account  of  the  widening  of  Liv- 
ingston Street  this  block  is  only  160  feet  deep.  Any 

18 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

form  of  treatment  would  seem  to  be  unduly  expensive 
and  even  then  the  court  house  would  not  be  quiet,  as 
the  court  rooms  would  be  subjected  to  the  noise  from 
the  crossovers  at  the  corners  of  Livingston  Street  with 
Court  Street  and  Boerum  Place.  The  municipal 
building  would  need  to  be  placed  on  the  plaza  site  or 
elsewhere.  One  of  the  main  objections  to  this  plan  is 
that  the  arrangement  of  all  the  buildings  must  be  on  an 
axis  that  does  not  correspond  with  Borough  Hall,  the 
park,  or  Washington  Street,  and  on  this  account  the 
open  place  between  the  flanking  buildings  as  well  as 
the  buildings  themselves  would  stand  awry. 

FIFTH  PLAN 

WASHINGTON  STREET  SITE  FOB  COURT  HOUSE 
(See  diagram  marked  Plan  5) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Department 
of  Bridges,  and  assessed  value  of 
additional  property  required  for  same,  $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings  be- 

tween Washington  and  Fulton  streets,     1,249,100.00 

3.  Site  for  new  court  house  takes  part  of  last 

item. 

4.  Municipal  Building  site  at  south-west  cor- 

ner of  Court  and  Joralemon  streets 
(title  now  vested  in  the  city) 

Total $5,261,195.00 

This  plan  contemplates  placing  the  new  court  house 
on  Washington  Street  opposite  the  Post  Office,  and  the 
new  municipal  building  at  the  corner  of  Court  and 
Joralemon  on  the  site  condemned  for  that  purpose. 
It  separates  the  court  house  from  the  Hall  of  Records. 
The  chief  objection,  however,  is  that  the  available 


REPORT  TO  THE  COMPTROLLER  ON 

space  is  not  sufficient.  A  court  house  of  the  size  de- 
sired would  be  compelled  to  assume  an  awkward 
shape,  and  it  would  be  so  narrow  that  an  inner  court 
to  light  court  rooms  facing  on  it  would  be  out  of  the 
question.  Throughout  our  work  we  have  kept  in  mind 
the  desire  of  the  judges  for  quiet  rooms  for  the  conduct 
of  trials.  Washington  and  Fulton  streets  are  noisy  on 
account  of  surface  cars  and  vehicles  and  it  would  in 
our  opinion  be  undesirable  to  have  court  rooms  front 
on  these  streets.  The  court  house  is  to  be  a  much 
larger  and  more  imposing  building  than  the  new  mu- 
nicipal building,  and  it  should  not  be  placed  on  a 
contracted  site. 

SIXTH  PLAN 

PRESENT  SITE  FOR  COURT  HOUSE 
(See  diagram  marked  Plan  6) 

1.  Cost  of  bridge  changes  and  re-location  of 

tracks  as  estimated  by  the  Department 
of  Bridges,  and  assessed  value  of  addi- 
tional property  required  for  same.  .  .  .  $4,012,095.00 

2.  Assessed  valuation  of  land  and  buildings  be- 

tween Washington  and  Fulton  streets.  .      1,249,100.00 

3.  Site  for  Municipal  Building  takes  part  of 

last  item. 

4.  Site  for  court  house  takes  Polytechnic  land 

and  buildings,  etc.,  in  addition  to  land 

now  owned  by  the  city 733,700.00 

Total $5,994,895.00 

This  plan  contemplates  that  the  court  house  would 
occupy  all  of  the  present  court  house  block  except  the 
Hall  of  Records;  that  it  should  have  a  large  inner 
court  with  court  rooms  opening  upon  it;  and  that  the 
municipal  building  should  be  placed  on  the  plaza  site. 

20 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

The  available  area  for  the  court  house  would  be 
147,700  feet.  The  inner  court  could  be  150  feet  by 
200  feet  with  a  superficial  area  of  30,000  feet.  The 
building,  if  six  stories  high,  could  easily  have  four 
floors  devoted  to  court  rooms.  Each  floor  would 
afford  space  for  nine  court  rooms,  each  forty  feet  by 
fifty  feet,  and  one  large  court  room  for  extraordinary 
trials,  50  feet  by  65  feet.  This  would  make  forty 
court  rooms  in  all  and  there  would  be  ample  space 
for  a  jury  room  and  robing  room  in  connection  with 
each  court  room. 

The  street  noises  would  be  an  objection  to  this  site 
if  the  court  rooms  fronted  the  street.  We  are  advised, 
however,  that  the  fronting  of  the  court  rooms  on  the 
inner  court  would  protect  them  entirely  from  street 
noise.  Ventilation  in  so  large  a  building  as  this  would 
necessarily  be  furnished  by  a  power  system,  and  would 
be  independent  of  the  movement  of  outside  air.  In- 
deed, it  seems  to  be  conceded  that  a  power  system 
succeeds  only  when  windows  are  not  opened  and  shut 
at  will.  Moreover,  trials  are  not  held  during  the  hot 
months  of  July,  August  and  September.  On  account 
of  these  considerations  we  are  of  the  opinion  that  in- 
side court  rooms  can  be  fully  as  comfortable  and  as 
well  ventilated  as  if  they  fronted  on  the  streets.  The 
inner  court  would  be  so  large  that  there  would  be  an 
abundance  of  sunlight.  This  would  not  be  the  case 
with  the  lower  stories  if  the  building  were  fifteen  or 
twenty  stories  high,  but  our  investigations  have  shown 
that  with  a  building  not  over  six  stories  in  height,  the 
sunlight  will  be  abundant. 

Careful  consideration  has  been  given  to  the  subject 
of  noise  during  construction.  The  first  portion  of  the 
new  court  house  built  would  be  that  fronting  on 

21 


REPORT  TO  THE  COMPTROLLER  ON 

Borough  Hall  Park  between  the  present  court  house 
and  Court  Street.  This  would  be  followed  in  due 
course  by  the  construction  of  the  Livingston  Street 
front  after  the  Polytechnic  Institute  would  be  able  to 
locate  in  a  new  place.  Later  the  remaining  portion  of 
the  new  court  house  would  be  built  where  the  old 
court  house  now  stands.  It  cannot  be  denied  that 
there  would  be  some  inconvenience  to  court  work 
from  construction  noise  while  these  successive  portions 
were  building,  but  if  the  new  municipal  building  is 
erected  within  the  next  few  months  on  the  site  selected 
for  it  adjoining  the  old  court  house,  there  will  be  the 
same  degree  of  construction  noise.  Moreover,  wher- 
ever the  new  court  house  is  built,  it  is  almost  certain 
that  it  will  be  followed  by  some  new  construction  in 
the  immediate  locality.  The  main  thing  is  to  obtain 
freedom  from  noise  after  construction  is  over,  and  we 
believe  that  the  work  of  the  courts  could  be  conducted 
in  inside  court  rooms  on  this  site  with  more  quiet  than 
in  outside  rooms  on  any  of  the  other  sites  that  have 
been  suggested.  We  find  that  the  first  wing  of  the 
new  building  could  be  built  as  a  unit  providing  six- 
teen to  twenty  court  rooms  with  all  requisite  minor 
rooms  and  facilities.  These  would  be  more  court  rooms 
than  are  now  in  use.  This  would  afford  the  needed  expan- 
sion in  connection  with  the  use  of  the  old  court  house, 
which  has  fourteen  court  rooms.  The  later  comple- 
tion of  the  Livingston  Street  wing  would  furnish  a 
total  of  thirty-two  court  rooms  in  the  new  building. 
This  would  permit  the  abandonment  of  the  old  court 
house  so  that  the  last  wing  could  be  built  where  the 
old  court  house  now  stands.  If  the  money  for  the 
construction  of  the  new  court  house  is  appropriated 
from  time  to  time,  as  will  probably  be  the  case,  it 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

will  be  no  disadvantage  to  have  the  different  parts 
successively  available  for  construction.  Forty  new 
court  rooms  will  not  be  needed  for  some  years,  and 
there  will  be  a  saving  of  interest  to  the  city  if  the 
entire  expenditure  is  not  made  at  one  time.  The 
county  court  now  has  four  court  rooms,  the  supreme 
court  ten,  the  appellate  division  one,  and  the  appellate 
term  one — in  all  sixteen.  The  act  empowering  the 
judges  to  select  a  site  and  approve  a  court  house  does 
not  contemplate  that  the  county  court  will  be  provided 
for  in  the  new  building.  If,  however,  a  forty  court 
room  building  should  be  erected,  it  is  evident  that  the 
county  court  should  be  housed  in  it  or  else  many  of 
the  court  rooms  would  be  idle  for  a  long  time. 

The  new  court  house  in  Manhattan  will  provide 
fifty  to  sixty  court  rooms.  A  new  Brooklyn  court 
house  containing  forty  court  rooms  would  provide  as 
much  space  as  is  likely  to  be  needed  during  the  next 
forty  years,  and  the  city  would  hardly  care  to  lose 
interest  on  unnecessary  space  for  a  longer  period. 
When,  however,  the  civil  business  transacted  in  the 
new  court  house  should  need  all  of  the  court  rooms, 
the  city  would  probably  feel  the  need  of  a  separate 
criminal  court  building  in  some  other  part  of  the 
borough.  It  is  unlikely  that  the  county  court  will 
continue  both  its  civil  and  criminal  terms  indefinitely. 
The  tendency  in  all  large  cities  is  to  separate  civil  and 
criminal  trials  both  as  to  judges  and  location. 

The  new  court  house  in  this  location  would  be  near 
the  Hall  of  Records,  a  comparatively  new,  sound  and 
dignified  building.  Both  judges  and  trial  lawyers  are 
accommodated  by  having  the  real  estate,  surrogate's 
and  county  clerk's  records  and  books  near  at  hand. 
Part  of  the  large  space  under  the  new  court  house 

23 


REPORT  TO  THE  COMPTROLLER  ON 

could  be  used  for  moisture  proof  vaults  for  the  storage 
of  obsolete  papers  that  are  already  crowding  the 
county  clerk's  office. 

The  great  advantages  of  this  site  to  the  borough  are 
apparent.  It  holds  the  court  business  of  the  borough 
in  the  locality  which  has  for  generations  become 
adapted  to  it.  It  preserves  and  improves  the  present 
office  center.  It  is  the  most  convenient  spot  in  the 
city  for  judges,  litigants,  lawyers  and  jurors,  and  is 
also  the  most  accessible  from  the  court,  municipal  and 
financial  centers  of  Manhattan.'  The  new  rapid  transit 
lines  will  make  it  more  accessible  from  every  part  of 
Greater  New  York. 

The  present  location  of  the  Polytechnic  Institute  is 
not  well  adapted  for  educational  purposes.  Its  future 
growth  is  circumscribed  and  probably  it  is  only  a  ques- 
tion of  a  few  years  when  another  location  must  be 
found  for  this  growing  institution. 

The  site  for  the  municipal  building  on  Washington 
Street,  opposite  the  Post  Office,  would  have  an  area  of 
approximately  52,000  square  feet — being  an  irregular 
plot  380  feet  by  150  feet.  It  would  be  a  moderately 
high  office  structure  and  would  fit  an  irregular  plot  of 
ground  better  than  the  more  monumental  court  house. 
It  would  also  be  adjustable  to  the  site  bounded  by 
office  buildings  with  the  height  of  which  it  would  har- 
monize. The  distance  of  the  new  municipal  building 
from  Borough  Hall  would  be  800  feet.  In  Manhattan 
the  distance  between  City  Hall  and  the  new  municipal 
building  is  640  feet.  A  station  of  the  new  Interborough 
subway  will  be  near  the  corner  of  Fulton  and  Clark 
streets.  This  will  be  the  great  Manhattan  west  side 
subway,  running  south  from  Times  Square  through 
Seventh  Avenue,  Park  Place  and  William  Street, 

24 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

thence  under  the  East  River  at  Old  Slip,  thence  through 
Clark  and  Fulton  streets  to  the  junction  with  the  two 
tracks  under  Borough  Hall,  not  now  used,  but  which 
when  used  will  make  Brooklyn's  four  track  subway  to 
Flatbush  Avenue,  Long  Island  station,  Park  Plaza  and 
Eastern  Parkway. 

Not  only  will  the  placing  of  the  municipal  building 
on  the  Washington  Street  site  allow  the  much  needed 
widening  of  that  street  without  extra  cost,  but  the 
erection  of  the  court  house  on  the  present  site  as  pro- 
vided in  this  plan  will  admit  of  the  widening  of  the 
streets  by  which  it  is  bounded,  viz.,  Livingston,  Court 
and  Joralemon  streets.  This  consideration  is  important 
in  view  of  the  concentration  of  street  cars  and  other 
traffic  at  this  center  of  street  circulation. 

No  other  plan  presents  equally  good  sites  for  the  new 
court  house  and  the  new  municipal  building.  This  plan 
has  the  further  merit  that  it  harmonizes  the  four  fac- 
tors, i.  e.,  court  house,  municipal  building,  bridge  plaza 
and  re-location  of  tracks,  in  a  manner  where  each  fac- 
tor brings  additional  benefit  to  every  other  factor. 
The  removal  of  the  elevated  tracks  without  opening  up 
the  bridge  approach  would  be  only  a  partial  improve- 
ment. Placing  the  court  house  on  the  Clinton  Street 
site  or  Flatbush  Avenue  Extension  site  would  have  no 
relation  whatever  to  the  other  three  factors.  This 
plan  logically,  harmoniously,  and  at  comparatively 
small  expense  paves  the  way  for  the  improvement  of 
the  entire  area  between  Brooklyn  Bridge  and  the  Hall 
of  Records  and  furnishes  frontages  that  will  attract 
the  construction  of  substantial  and  handsome  business 
buildings. 

For  these  reasons  we  recommend: 

25 


REPORT  TO  THE  COMPTROLLER  ON 

1.  The  removal  of  the  elevated  railroad  tracks  from 
Borough  Hall  Park  and  lower  Fulton  Street,  pursuant 
to  the  permissive  legislation  passed  by  the  last  session 
of    the    legislature  as    an  amendment  to  the  Rapid 
Transit  Act. 

2.  The  acquirement  by  the  city  of  the  land  not  now 
owned  by  the  city  between  Fulton  Street  and  Liberty 
Street  on  the  west  and  Washington  Street  on  the  east, 
also  three  lots  in  the  small  block  opposite  Clark  Street. 

3.  The  widening  of  Washington  Street  to  110  feet, 
which  is  the  same  width  as  the  throat  between  the 
Mechanics'  Bank  Building  and  Myrtle  Avenue. 

4.  The  location  of  the  new  municipal  building  be- 
tween Fulton  and  Washington  streets  approximately 
opposite  the  Post  Office. 

5.  The  location  of  the  new  court  house  on  the  present 
site  of  the  old  court  house,  such  site  to  include  the  land 
intended  for  the  new  municipal  building,  and  also  the 
rest  of  the  land  in  that  block  on  Court  and  Livingston 
streets,  all  court  rooms  to  front  on  a  large   interior 
court. 

FREDERIC  B.  PRATT 
EDWARD  M.  BASSETT 
FRANK  M.  BROOKS 
ALEXANDER  McKiNNY 
FRANK  C.  MUNSON 
JAMES  H.  POST 
CHARLES  A.  SCHIEREN 
ALFRED  T.  WHITE 
HOWARD  O.  WOOD 
EDWARD  C.  BLUM 
Dated,  June  21st,  1913 


ADDITIONAL  REPORT 

BY  A  MINORITY  OF  THE  COMMITTEE 

We,  the  undersigned,  while  agreeing  with  Recom- 
mendation No.  2  of  the  foregoing  report,  believe  that 
all  of  the  three  blocks  between  Fulton  Street  on  the 
west  and  Liberty  Street  on  the  east,  should  be  ac- 
quired by  the  City  and  not  only  the  three  lots  opposite 
Clark  Street.  Our  reasons  for  this  belief  stated  briefly 
are,  that  the  buildings  erected  upon  these  blocks  are  of 
poor  construction  and  unsightly  and  their  condition 
will  not  be  improved  by  the  bridge  approach,  nor  will 
a  better  class  of  buildings  be  erected  in  their  stead. 
They  stand  as  a  menace  to  the  improvement  of  Fulton 
Street  north  of  Clark  and  if  not  removed  will  carry 
upon  their  rear  walls  billboards  and  signs  which  will 
mar  the  effect  of  the  new  bridge  approach.  If  they 
are  not  removed  the  traveler,  approaching  Brooklyn  by 
means  of  the  Bridge  cars,  will  have  but  a  momentary 
glimpse  of  the  improved  plaza  and  the  new  municipal 
building  as  the  train  swings  around  into  Adams  Street. 
If,  on  the  contrary,  the  buildings  are  removed  the  effect 
of  the  improvement  will  be  noticed  as  soon  as  Sands 
Street  is  reached.  This  will  be  the  more  noticeable  to 
travelers  by  the  trolley  and  to  pedestrians  using  the  bridge. 

The  assessed  valuation  of  these  blocks  is  $442,850.  If 
they  are  acquired  by  the  City  it  is  our  belief  that  the  in- 
crease in  the  assessed  value  of  property  upon  Fulton  Street 
immediately  opposite  to  the  blocks  in  question  will  more 
than  equal  the  assessed  valuation  of  the  property  taken. 

HOWARD  O.  WOOD 
FRANK  C.  MUNSON 
JAMES  H.  POST 

27 


PLAN  1 


PLAN  2 


PLAN  3 


PlAN  4 


PLAN  5 


'OL 


PLAN  6 


SUPPLEMENTAL  REPORT 

SUBMITTED  TO  THE  COMPTROLLER  WITH  THE 
PERSPECTIVE  DRAWINGS 

It  was  recognized  from  the  beginning  of  the  study  of 
this  problem  that  any  recommendations  must  of  ne- 
cessity take  into  consideration  existing  conditions  and 
must  co-ordinate  with  any  general  plans  for  the  devel- 
opment of  the  borough  as  a  whole.  A  thorough  study 
has  been  given  this  question  and  it  may  be  stated  with 
reasonable  assurance  that  the  proposed  location  and 
general  arrangement  of  the  court  house  and  municipal 
building  not  only  do  not  in  any  way  conflict  with 
future  changes  but  contribute  very  largely  to  the 
accomplishment  of  further  improvements. 

An  exhaustive  argument  has  been  made  already  on 
the  location  of  these  buildings.  In  addition  to  the  rea- 
sons already  given  for  the  suggested  locations,  it  may 
be  stated  that  the  plaza  site  is  not  well  suited  as  a 
location  for  the  court  house.  On  such  a  location  the 
interior  light  courts  would  be  too  small  to  successfully 
serve  the  court  rooms,  and  the  block  too  irregular. 
Furthermore,  since  the  character  of  the  municipal 
building  is  that  of  a  high  office  structure,  a  less  regular 
plot  of  ground  is  required  as  a  site  than  is  the  case 
with  the  more  monumental  court  house.  This  building 
is  more  adjustable  to  a  site  bounded  by  office  buildings 
with  the  height  of  which  it  will  harmonize. 

The  court  house  is  the  focal  point  of  a  system  of 
arteries  leading  to  various  centers — Washington  Street 
to  the  Brooklyn  Bridge,  Court  Street  to  the  docks, 
Fulton  Street  to  the  retail  business  center  at  its  inter- 

34 


,  . 

I 


REPORT  TO  THE  COMPTROLLER  ON 

Square  might  be  carried  around  the  north  end  of  the 
proposed  Municipal  Building. 

The  buildings  located  as  proposed  do  not  make  a 
formal  group  in  the  strict  sense  of  the  word.  They  may 
be  made,  however,  to  count  together.  One's  attention, 
immediately  on  crossing  the  Brooklyn  Bridge,  whether 
by  the  cars,  by  vehicle  or  on  foot,  will  be  controlled  by 
the  fagade  of  the  municipal  building  with  its  fore- 
ground of  public  space  and  on  passing  beyond  this 
building  into  Washington  Street,  one's  attention  will 
be  carried  with  interest  to  the  fagade  of  the  court 
hous^e  which  will  frame  the  Borough  Hall  silhouette 
aind  dominate  Borough  Hall  Square. 

Owing  to  the  location  of  the  Borough  Hall  on  the 
Washington  Street  axis,  it  is  recommended  that  no 
central  motif  be  used  in  the  court  house  design.  The 
fagade  of  the  court  house  must  be  designed  as  a  foil  to 
the  broken  silhouette  of  the  Borough  Hall  and  its 
cupola.  Should  the  Borough  Hall  be  ultimately  re- 
moved, the  axis  may  be  controlled  by  a  central  feature 
of  monumental  or  commemorative  character.  The 
converging  lines  of  the  lower  cornice  of  the  buildings, 
of  the  curbs  and  of  the  lamp  posts,  carry  the  eye  for- 
ward to  this  motif  and  to  the  fagade  of  the  court  house. 

Co-operation  between  the  architect  selected  for  the 
municipal  building  and  the  United  States  Supervising 
Architect  should  be  urged,  so  that  this  building  and 
the  Post  Office  will  be  harmonious  in  architectural 
character. 

Various  monuments  and  architectural  details  are 
suggested  on  the  plans.  They  must  all  be  in  harmony 
and  in  scale  with  one  another  and  with  the  buildings. 
Their  setting  must  be  carefully  studied  in  detail.  The 
placing  and  proportioning  of  balustrades,  of  pools  of 

86 


iii!;!!   !  .. 


# 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

water,  of  grass  plots  and  in  particular  of  trees  must  be 
done  in  the  finest  way,  as  it  is  only  by  a  careful  atten- 
tion to  all  these  details  that  this  group  can  be  brought 
into  harmony  of  high  order  in  keeping  with  its 
importance. 

The  spaces  surrounding  the  public  buildings,  where 
not  needed  for  circulation,  should  be  parked  and  trees 
should  be  planted  wherever  they  will  serve  to  enhance 
the  buildings,  screen  undesirable  objects,  at  the  same 
time  not  interfering  with  business  interests.  The  same 
variety  of  tree  should  be  planted  throughout  and 
should  not  exceed  25  to  30  feet  in  height. 

Of  almost  equal  importance  is  the  question  of  lamp 
posts — their  height,  design,  spacing  and  fixtures.  It  is 
suggested  that  this  be  exhaustively  studied  in  the  light 
of  modern  invention  so  as  to  make  of  the  streets  and 
open  spaces  involved,  a  model  for  other  parts  of  the 
city. 

The  paving  of  these  streets  and  open  spaces  also 
should  be  perfect.  Creosoted  wood  block  is  recom- 
mended for  its  all  round  qualities. 

The  above  recommendations,  if  carried  into  effect, 
will  contribute  to  making  this  entrance  to  Brooklyn 
harmonious  and  impressive.  The  studies  submitted  in 
plan  and  perspective  should  be  understood  to  be  only 
general  suggestions  along  the  lines  indicated. 

CONSIDERATION  IN  DETAIL  OF  THE  REQUIREMENTS  OF 
THE  VARIOUS  BUILDINGS 

Court  House: 

The  courts  and  allied  departments,  at  present  situ- 
ated in  the  old  court  house  building,  in  the  Borougli 

37 


REPORT  TO  THE  COMPTROLLER  ON 

Hall,  in  the  Hall  of  Records  and  in  rented  quarters, 
which  would  be  housed  in  this  building,  are: 

Supreme  Court, 

Supreme  Court,  Appellate  Division, 

County  Court,  Criminal  Parts, 

County  Court,  Civil  Parts, 

Grand  Jury, 

County  Clerk, 

District  Attorney, 

Sheriff, 

Commissioner  of  Jurors, 

All  Court  Stenographers  and  Clerks, 

Justices'  Chambers, 

Justices'  Reference  Library, 

Law  Library. 

Space  occupied  at  the  present  time  by  the  various 
departments  is  as  follows: 

Square  Feet. 

County  Clerk 20,000 

District  Attorney 8,000 

Sheriff 2,200 

Commissioner  of  Jurors 1,600 

That  space  included  in  the  Old  Court  House, 
Appellate  Division,  in  the  Borough  Hall, 
Appellate  Term  in  rented  quarters  includ- 
ing justices'  chambers,  about 120,000 

The  bill  for  the  selection  of  the  court  house  site  does 
not  provide  quarters  in  this  building  for  the  County 
Courts,  but  it  is  likely  that  for  several  years  all  County 
Court  business  would  be  handled  in  the  new  court 
house. 

A  safe  assumption  for  a  new  building  providing  ample 
light  courts  and  set  back  fifty  feet  from  both  Court 

38 


PUBLIC  IMPROVEMENTS  IN  BROOKLYN 

Street  and  Joralemon  Street  is  ten  court  rooms  per 
floor.  A  building  having  four  court  floors  and  two 
additional  floors  would  have  an  area  of  approximately 
450,000  square  feet.  Each  court  room  unit,  moreover, 
would  be  amply  supplied  with  judges'  robing  room, 
clerks'  room,  and  necessary  witness,  counsel  and  jurors' 
rooms.  This  building  would  be  about  110  feet  high  to 
the  main  cornice.  In  addition,  space  would  be  provided 
for  an  emergency  hospital,  for  newspaper  reporters, 
and  for  a  general  public  waiting  room. 

The  new  court  house  would  provide  seventy  to 
eighty  thousand  square  feet  on  the  first  floor,  sixty- 
five  to  seventy  thousand  square  feet  approximately  on 
the  court  room  floors,  and  fifty  thousand  to  sixty 
thousand  square  feet  on  the  upper  floor  which  should 
be  planned  as  justices'  chambers. 

Hall  of  Records: 

Space  vacated  by  the  county  clerk,  at  present 
housed  in  the  Hall  of  Records,  would  provide  twenty- 
five  per  cent,  additional  room  for  the  Surrogate's 
Court  and  the  Registrar.  Should  a  new  structure  of 
the  same  height  as  the  court  house  be  erected  at  some 
future  date,  and  set  back  from  Court  Square  and  Ful- 
ton Street,  the  space  available  for  those  departments 
would  be  nearly  doubled. 

Municipal  Building: 

A  building  on  the  plaza  site  about  eight  stories  high, 
would  have  a  floor  area  equivalent  to  the  building  now 
planned  to  be  placed  on  the  Joralemon  Street  site.  It 
would  adequately  house  all  of  the  administrative  de- 
partments and  bureaus.  The  chief  officials  would 

39 


REPORT  TO  THE  COMPTROLLER 

doubtless  remain  in  Borough  Hall.  Borough  Hall 
could  be  used  entirely  for  administrative  business  as 
the  Appellate  Division  would  move  to  the  new  court 
house. 

FREDERIC  B.  PRATT 
EDWARD  M.  BASSETT 
FRANK  M.  BROOKS 
ALEXANDER  McKiNNY 
FRANK  C.  MUNSON 
JAMES  H.  POST 
CHARLES  A.  SCHIEREN 
ALFRED  T.  WHITE 
HOWARD  O.  WOOD 
EDWARD  C.  BLUM 
Dated,  July  25th,  1913 


YC  9V207 


M259802 


THE  UNIVERSITY  OF  CALIFORNIA  LIBRARY 


